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Sustainable Ways of Preventing Homelessness (Copenhagen, 22 November 2013)

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Sustainable Ways of Preventing Homelessness (Copenhagen, 22 November 2013) Comments paper - Spain Peer Review on homelessness, Denmark 2013 Sustainable ways of preventing homelessness (Copenhagen, 22 November 2013) Comments paper from Spain1 María J. Aldanas2 Asociación Provivienda3 The situation of homelessness in Spain: special focus on youth homelessness In Spain, the issue of homelessness has achieved a much higher profile and received more attention in recent times, in line with the political momentum at EU level. Although in contrast to the EU trend, the question of accommodation for homeless people has been approached from the social services point of view, rather than from the housing perspective. The Public System of Social Services is responsible for implementing homelessness policies, both the regional administration (Autonomous Communities) and the municipalities, remain competent in this area and develop their work through the social service centres4. This municipal network is co-financed by the State General Administration (SGA) through the Ministry of Health, Social Services and Equality, through the Basic Provision of Social Services Plan, agreed by the three administrative levels, which includes specific support to the homeless. Along with the municipal social services, social organisations play a major role in service provision for the homeless, partially funded by the SGA. Regarding housing policies, responsibility is shared between all the three levels of government. The State, through the Ministry of Public Works, is in charge of developing state housing plans, of which the most recent is the State Plan of Rental Housing Promotion, Rehabilitation, Regeneration and Urban Renewal (2013-2016). Both communities and municipalities are responsible for the provision of social housing for low-income groups. According to the latest national Survey by the Spanish National Statistics Institute (INE) in 20125 22,938 people were homeless in Spain, this compared to 21,900 in 2005, representing an increase of 4.8%. Caritas figures show an increase in the number of homeless people using their services from 24,463 in 2007 to 30,415 in 20116. The average age of a homeless person is 42.7 (37.9 in the 2005 Survey). This group is primarily composed of men 80.3%. As regards nationality, 54.2% were Spaniards and 45.8% were foreign nationals (compared to 48% of the 2005 Survey). 89.0% of homeless persons slept in the same place every night. 43.9% slept in group accommodation (43.2% in a hostel or residence, 0.5% in shelters for women victims of violence and 0.2% in centres for refugees). Another 20.8% slept in flats or pensions provided by NGOs or other institutions, and the remaining 1 Prepared for the Peer Review in Social Protection and Social Inclusion programme coordinated by ÖSB Consulting, the Institute for Employment Studies (IES) and Applica, and funded by the European Commission. © ÖSB Consulting, 2013 2 In collaboration with Clara I. Barraca Goicoechea, from Ministry of Health, Social Services and Equality 3 Member of fePsh, Spanish Umbrella of Associations supporting the homeless. 4 A current reorganisation of government in process will affect Social services. 5 Spanish National Statistics Institute (INE). 2012 Survey to Homeless People. The definition of homeless used by INE does not correspond with ETHOS typology. 6 VV.AA, 2012, Cáritas Española, Acompañandonos. Mirada, Acción y propuestas de Cáritas con personas que están sin hogar. Red de programas de personas sin hogar de Cáritas. 1 Comments paper - Spain Peer Review on homelessness, Denmark 2013 35.3% stayed outside of the existing care network, either in public spaces (14.9%), in make-shift accommodation (12.8%) or in squats (7.6%). There is no official statistics regarding rough sleepers although a Caritas report estimated7 some 6,000 to 10,000 people slept on the streets in Spain. Periodic homeless counts are conducted as well specially in large cities such as the recent ones in Madrid8 and Barcelona9. The traditional profile of homeless people showed in surveys was a man of a certain age, single, with alcohol abuse issues, socially disadvantaged and with low level of education. The 2012 Survey data from INE show there are “new entrants” to homelessness. In respect to this change, if we look at the main reasons of homelessness, more people became homeless as a consequence of job loss (from 30% in 2005 to 45% in 2012), or failure to pay for their accommodation (from 11.4% in 2005 to 26% in 2012) while other reasons like relationship break-ups remained almost unchanged (20.9%). Regarding completed studies, 60.3% of the homeless attained a secondary education level, 22.2% primary studies or lower, and 11.8% completed higher education. In terms of health, 30.7% of them claimed to have a chronic illness. It is worth noting that 16.6% of these suffer from some kind of mental disorder and 15.2% of them had a recognised disability. As for drug use, 62.7% stated that they had never used drugs, and 37.3% had used them at some point. In contrast to this scenario, the Danish context profiles have higher prevalence of mental health problems, drug use, or both. Similarly, service providers working with the homeless have witnessed the apparition of new profiles. In particular, an increasing number of homeless service users are people who are currently unemployed and who have exhausted all available unemployment benefits or other subsidies and entitlements. They often lack family support or families cannot support them any longer. Cases of loss of habitual residence due to foreclosures or non payment of rent are appearing more frequently in the different services, broadening the socio-economic profile of the homeless population. Turning now to the issue of homeless intervention in relation to accommodation, the "Staircase Model"10 remains the prevalent approach in addressing homelessness in Spain. Most services require conformity with treatment and abstinence from drugs and alcohol. The "Housing First"11 approach is still not well known in our country and little literature can be found on the subject in Spanish12. In fact, this approach has been known by participation in European networks such as FEANTSA, mainly by social organisations, which have begun to disseminate and discuss the possibilities of implementation in Spain13. Therefore, it is more common to find experiences of the broader concept of "housing led approaches" which places independent accommodation as a key to developing social intervention. To mention just a few of them: in the private sector, the Rental Mediation Programme for disadvantaged groups run by Provivienda or housing management of social housing within the Network of Social Housing 7 2011 Homeless Campaign, Cáritas Spain. 8 IV Homeless Count, City of Madrid, 13 December 2012. 9 Sales i Campos, Albert. 2013, Diagnosi 2013. Homeless people in the city of Barcelona and the evolution of resources of the Network of Attention to Homeless people. 10 In Spain the term ‘itinerarios residenciales’ -residential itineraries-, is used more often. It does not imply a linear intervention; accommodation is used in a flexible manner. 11 “Housing first” in a broader sense: from Pathways to Housing to the other variants. 12 Op. Cit. footnote 6, García-Carpintero Broto, G., Primero Vivienda, pg. 289. 13 VV.AA, 2012, EAPN Madrid, El modelo Housing First, una oportunidad para la erradicación del Sinhogarismo en la Comunidad de Madrid. 2 Comments paper - Spain Peer Review on homelessness, Denmark 2013 Inclusion by Fundació Mambre. In the public sphere, a pilot project is currently being designed by the social housing department of the Housing Agency of Catalonia in partnership with different Catalan homeless service providers. Some organisations have begun to implement initiatives in line with the “Housing First” approach by placing people in permanent housing rather than in shelters like the Homeless Support Project in Zaragoza (diocesan Caritas). Although limited and experimental, the RAIS Foundation plans to implement a project that incorporates the “Housing First” approach in several municipalities in 2014. The project adopts an orthodox housing first approach, targeting homeless people with mental health problems, addictions and disabilities in single residential units. The implementation will be systematically tested and results evaluated. As regards the young homeless, the INE data show that 19.3% are young people aged 18 to 29: INE Surveys 2005 2012 1,535 (13.5% of all Spanish 1,026 (8.2% of all Spanish Young Spanish homeless) homeless) 3,408 (32.4% of all Young immigrants 5,004 (47.4% of all immigrants) immigrants) All homeless youth 6,539 (29.9 % of all homeless) 4,434 (19.3% of all homeless) Source: INE data: Surveys 2005 and 2012 designed by fePsh14 Unlike the Danish case, in Spain there has been a decrease in youth homelessness and an increase of the average age of the homeless in comparison to the 2005 Survey. On the other hand, the survey confirms young migrants are disproportionately represented among the young homelessness (both in proportion to the general homeless population and within the immigrant population) although numbers are lower than in the 2005 Survey. Notwithstanding the preceding data, the homeless youth may be difficult to detect and count as mentioned in the Danish host country paper. There is some agreement that some homeless youth situations may be hidden15 as young people do not wish to be considered homeless are reluctant to access traditional homeless services such as shelters, soup kitchens, and clothing services - even refusing the intervention of emergency services. Young homeless individuals staying temporarily with friends, squatting or even living in slums around the cities and on streets are common situations. According to the Observatory of Council for the Emancipation of the Youth, 80% of young Spanish people under-30 are still living with their parents due to the high percentage of their income they would need to dedicate to buy or rent a home.
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